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Future Directions for Scientific Advice in Europe FUTURE DIRECTIONS FOR SCIENTIFIC ADVICE IN EUROPE Edited by James Wilsdon and Robert Doubleday April 2015 Open access. Some rights reserved. This work is licensed under the Creative Commons Attribution-Noncommercial 4.0 International (CC BY-NC 4.0) licence. You are free to copy and redistribute the material in any medium or format and remix, transform, and build upon the material, under the following terms: you must give appropriate credit, provide a link to the licence, and indicate if changes were made. You may do so in any reasonable manner, but not in any way that suggests the licensor endorses you or your use. To view the full licence, visit: www.creativecommons.org/licenses/by-nc/4.0/legalcode The Centre for Science and Policy gratefully acknowledges the work of Creative Commons in inspiring our approach to copyright. To find out more go to: www.creativecommons.org Published by Centre for Science and Policy April 2015 © Centre for Science and Policy. Some rights reserved. 10 Trumpington Street Cambridge CB2 1QA [email protected] www.csap.cam.ac.uk ISBN: 978-0-9932818-0-8 Disclaimer The European Commission support for the production of this publication does not constitute endorsement of the contents which reflect the views only of the authors, and the Commission cannot be held responsible for any use which may be made of the information contained therein. FUTURE DIRECTIONS FOR SCIENTIFIC ADVICE IN EUROPE Edited by James Wilsdon and Robert Doubleday CONTENTS The introduction was updated in June 2015 to take account of developments in the European Commission. INTRODUCTION Acknowledgements 6 Future directions for scientific advice in Europe 8 James Wilsdon, Robert Doubleday and James Hynard 1 EVIDENCE AND INSTITUTIONS 25 Science as the fuel of the public policy machine 26 Robert Madelin Evidence and policy in the European Commission: towards a 33 radical transformation Anne Glover and Jan Marco Müller The in-house science service: the evolving role of the Joint 42 Research Centre Vladimír Šucha, David Wilkinson, David Mair, Martin Ahbe and Stephen Davies Scientific foresight at the European Parliament 52 Paul Rübig 2 SOME ADVICE ON ADVISERS 59 A moment of magic realism in the European Commission 60 Anne Glover Why it made sense to scrap the post of Chief Scientific Adviser 82 Doug Parr Lessons from Finland 90 Kari Raivio EASAC and the role of Europe’s national academies of science 97 Jos van der Meer, Christiane Diehl, Robin Fears, William Gillett and Sofie Vanthournout 3 ECOSYSTEMS OF EXPERTISE 107 The role of foundations at the science–policy interface 108 Wolfgang Rohe and Jeannine Hausmann Experts as cartographers of policy pathways for Europe 115 Martin Kowarsch and Ottmar Edenhofer Social science expertise in European innovation policy 125 Ulrike Felt Power, truth and progress: towards knowledge democracies in Europe 135 Andy Stirling 4 THE APPLIANCE OF SCIENCE 154 Behavioural governance in Europe 155 Holger Strassheim and Rebecca-Lea Korinek Innovation: managing risk, not avoiding it 163 Claire Craig and Mike Edbury Biomedicine and the life sciences: core issues for science-based 170 policy advice Jörg Hacker, Stefan Artmann and Sandra Kumm 6 FUTURE DIRECTIONS FOR SCIENTIFIC ADVICE IN EUROPE ACKNOWLEDGEMENTS In May 2014, the Centre for Science and Policy (CSaP) and the European Commission co-hosted a Brussels workshop on ‘New technologies and better evidence for EU policymaking’. One of its conclusions was the need to better connect the latest theory, policy and practice in this field. Building on our 2013 essay collection on Future Directions for Scientific Advice in Whitehall, we felt it would be useful to produce a similar collection exploring the future of scientific advice at the European level, during a period of transition to the new European Commission. We knew this was a topical and important issue, but didn’t anticipate quite how much debate it would provoke over recent months, linked in large part to the role of Chief Scientific Adviser, which Anne Glover occupied from 2012 to 2014. So it is through a combination of serendipity and design that this collection has emerged at an important juncture in these debates. We hope it makes a constructive contribution to discussions about the structures, processes and politics of scientific advice within the Commission and other European institutions, over the next year and beyond. Several individuals and organisations have made this initiative possible. Huge thanks to all our authors, for their enthusiasm for the project, and for the quality and insight of their essays. FUTURE DIRECTIONS FOR SCIENTIFIC ADVICE IN EUROPE 7 Special thanks to Stiftung Mercator and the European Commission, who funded the project, and we are particularly grateful to Wolfgang Rohe and Jeannine Hausmann at Stiftung Mercator; Robert Madelin and Prabhat Agarwal at DG Connect; Vladimír Šucha, David Wilkinson, David Mair and Stephen Davies at the Joint Research Centre; all of whom have provided advice, guidance and valuable support. We are also delighted that this collection is associated with the new International Network for Government Science Advice (INGSA), which has been set up by Sir Peter Gluckman, Chief Science Advisor to the PM of New Zealand, with the aim of strengthening dialogue and exchange between science advisory systems worldwide. Thanks to those who have assisted in the production process: Simon Baugh and Lizzy Mace for their copy-editing and proof-reading, and Mike Green at A3 Design for the design and printing. And finally, thanks to our colleagues at CSaP and SPRU – and most of all, to James Hynard at CSaP, who has done more than anyone to keep the collection, its authors (and its editors!) on track at every stage. James Wilsdon and Robert Doubleday April 2015 8 FUTURE DIRECTIONS FOR SCIENTIFIC ADVICE IN EUROPE FUTURE DIRECTIONS FOR SCIENTIFIC ADVICE IN EUROPE James Wilsdon, Robert Doubleday and James Hynard Across Europe, science policy controversies – whether over climate, crops, fracking or food safety – regularly ripple across the headlines. But debates over the institutional arrangements for bringing scientific expertise into policy are more commonly confined to bureaucratic corridors, think tanks and seminar rooms. So it has been fascinating (and no doubt, for some inside the Berlaymont, rather surprising) to observe the intensity of discussion that has been generated over the past year about the structures and procedures for scientific advice within the European Commission. The choice by President Juncker not to renew the post of chief scientific adviser (CSA) – a role created by his predecessor in 2012 and occupied for three years by the molecular biologist Anne Glover – was criticised by some as a backwards step, out of line with the broader march in many EU member states towards modern, evidence-informed policymaking. Others saw the move as an overdue recognition of the diversity of Europe’s decision-making cultures – what Sheila Jasanoff calls “civic epistemologies”.1 While the model of a presidential or prime ministerial science adviser is firmly established in countries like the US, UK, Ireland and New Zealand, it sits more awkwardly with the political cultures of Germany, France and other EU member states, which tend to rely on committees and more distributed sources of expertise. Brussels also has its own distinct political culture. In her essay in this collection, which is the fullest account to date of her three years as CSA, Anne Glover acknowledges that she was inadequately resourced to intervene effectively in the delicate balance of Commission decision-making. Vladimir Šucha, Director General of the Joint Research Centre, went further in a recent speech, describing the CSA as “a very difficult experiment” and arguing that “There’s no one person who can understand the milieu of 28 member states”.2 The introduction was updated in June 2015 to take account of developments in the European Commission. FUTURE DIRECTIONS FOR SCIENTIFIC ADVICE IN EUROPE 9 The decision to end the CSA experiment followed a public war of letters over the future of the role. In July 2014, a coalition of non-governmental organisations (NGOs), including Greenpeace, wrote to Juncker, arguing that: “The post of CSA is fundamentally problematic as it concentrates too much influence in one person…”.3 Soon afterwards, a letter in support of the CSA role was sent to Juncker, signed by forty scientific organisations and 773 individuals, which said “we cannot stress strongly enough our objection to any attempt to undermine the integrity and independence of scientific advice received at the highest level of the European Commission.”4 Further letters of support were sent by several scientific, business and civil society organisations, while a second, larger coalition of NGOs elaborated their opposition.5 The Moedas review It initially appeared that President Juncker would renew the mandate of the CSA. Quizzed on the topic in July 2014 by British MEP Julie Girling, he indicated as much.6 And in his mission letter to Carlos Moedas, the incoming Commissioner for Research, Innovation and Science, Juncker emphasized the need to “make sure that Commission proposals and activities are based on sound scientific evidence”.7 But when the Barroso Commission left office at the end of October, Anne Glover’s formal mandate ended, and the CSA role was placed in limbo.8 This sparked fresh coverage, particularly in the British media, where there was limited engagement with the substance of the issue,
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